A Handbook of Modern Japan

by Ernest W. Clement

The extension of local self-government to cities, towns, and villages (shi, chō, and son) led to the introduction into the Japanese language of several special terms, like jūmin (resident) and kōmin (citizen), and to a careful distinction between the respective rights and duties of the two. The “residents” of a city [town or village] include “all those who have their residence in the city [town or village], without distinction of sex, age, color, nationality, or condition in life.” A “citizen,” however, must be “an independent male person,” that is, one who has completed his twenty-fifth year and has a household; he must be “a subject of the empire and in the enjoyment of his civil rights”; and for two years he must have been a resident of the given local division, must have contributed toward its common burdens, and must have paid therein a “national land-tax of 2 or more yen in other direct national taxes.” The rights of a citizen over and above his rights as a resident are simply but comprehensively stated. They consist in the privilege of voting in the local elections, and of eligibility to the honorary offices. There is, however, a slight qualification of this seemingly universal citizen suffrage. Those whose citizenship, for reasons to be given later, is suspended, and “those who are in actual military or naval service,” are disfranchised. Companies, however, and “other juristic persons” are entitled to the suffrage on similar conditions with individuals.[102]

But when we come to consider the duties of a citizen, we find peculiar conditions. The citizen of a Japanese city, town, or village, is under obligation to fill any honorary office to which he may be elected or appointed; and except for certain specified reasons he cannot decline official service without being “subjected to suspension of citizenship for from three to six years, together with an additional levy, during the same period, of from one-eighth to one-quarter more than his ordinary share of contribution to the city expenditure.” Here is compulsory “public spirit”! On the whole, citizenship seems to be regarded more as a duty than as a privilege; and the citizens best qualified to fill official positions of trust would find it much more difficult than in America to “keep out of politics.”

The administration of local affairs in city, town, or village is more or less centralized. In the cities the origination and the administration of the local laws devolves upon a “city council”; and in the towns and the villages, upon certain chiefs and their deputies.

A city council consists of a mayor, his deputy, and a certain number of honorary councilmen. The mayor is appointed directly by the Emperor from among three candidates previously selected by the city assembly, a body to be described later. The deputy-mayor and councilmen are elected by the city assembly. The councilmen hold office for four years, but half of them retire every two years. In the case of a very large city it is permissible to divide the city into Ku (wards), each with its own chief and deputy and even council and assembly. The functions of a city council include the preparation of business for the city assembly and the execution of the decisions of the assembly; the administration of the city revenue, and the carrying out of the budget voted by the assembly; and general superintendence of city affairs.

In towns or villages these duties devolve upon the mayors and deputies, who are elected by the town or village assembly from among the local citizens.

The city assembly, already mentioned, is a popular representative body. The number of members varies, in proportion to the population, from thirty to sixty; and the membership is divided into three classes, elected by three classes of voters, according to the amount of taxes paid by the electors to the city. The object of this division, copied from the Prussian system of local government, seems to be to give the highest tax-payers a power and a representation greater than what they might secure by mere proportion of numbers.[103]

The assemblymen hold office for six years, are eligible for re-election, and, like the councilmen, draw no salary, but receive “compensation for the actual expenses needed for the discharge of their duties.” The assemblymen go out in rotation every two years.

The principal matters to be decided by the city assembly, besides the election of certain city officials by secret ballot, are as follows: the making and altering of city by-laws and regulations; the voting of the budget and all matters involving expense; the modes of imposing and collecting all kinds of taxes; the incurring of a new liability or the relinquishment of an acquired right; the modes of management of city property and establishments; etc.

The constitution of a town or village assembly is also based upon the population, according to a fixed ratio. But in the grouping of electors according to the amount of taxes paid, there are only two classes. The rules, powers, and functions of a town or village assembly correspond exactly to those of the city assembly.

There are, in the case of towns and villages, two provisions which are not necessary in the case of cities. One provision prescribes a method by which two or more towns or villages, by mutual agreement and with the permission of the superintending authority, may form a union for the common administration of affairs that are common to them. The other provision prescribes that, by a town or village by-law, decided upon by the Gun council, “a small town or village may substitute for the town or village assembly a general meeting of all citizens having suffrage.” This appears to be an imitation, in theory at least, of the Anglo-Saxon town meeting and village assembly.